Evaluation of Lands and Economic Development Services

Relevance

LEDSP is a key element of a shared vision between First Nations and the federal government that aims to strengthen the capacity of First Nations communities to manage their land and economic development. Recognizing that the legislative framework provided by the Indian Act contains limitations, Parliament adopted the First Nations Land Management Act and the First Nations Oil and Gas and Moneys Management Act. While pursuing specific goals, these two pieces of legislation reflect a commitment to provide opportunities for First Nations that desire to assume greater autonomy in managing their land and assets. Evaluation findings confirm that, in order to give full meaning to the various land management regimes available to First Nations, there is a need to build, enhance and sustain the institutional capacity of First Nations to plan and manage their land and economic development. Through the range of activities it covers, LEDSP contributes to this objective.

There is a direct alignment between LEDSP and the priorities of the federal government, including those of INAC. The 2009 Federal Framework for Aboriginal Economic Development prioritized economic development for First Nations, and that message has been echoed in successive federal budgets. During the period covered by the evaluation, INAC has also responded to this overarching priority by restructuring its land management and economic development programming in order to strengthen the linkages between these two functions.

Finally, the relevance of LEDSP must be properly contextualized, particularly as it relates to the activities of INAC in the administration of reserve land. Historically, the Department has undertaken a wide range of land management activities on behalf of First Nations. At the time of the evaluation, the Department continued to be involved in land management, particularly for those First Nations operating within the land management regime under the Indian Act. The Department is therefore expected to maintain dual roles, assuming land management functions for a number of First Nations, while providing the support, through LEDSP in particular, to First Nations that wish to assume greater autonomy in land and environmental management.

Performance – Effectiveness

Performance – Efficiency and Economy

The amalgamation of land management and economic development activities under LESDP has proven to be both beneficial and challenging. There is a strong logic that links these two areas, including environmental considerations. In practice, however, evaluation findings indicate that operational challenges remain in ensuring LEDSP can be managed as effectively as possible in order to fully achieve its expected impacts. The flexibility provided to regional offices in order to manage some of the LEDSP funding in accordance with local and regional priorities appears particularly relevant in that regard.

The ability of the Department to fully monitor and measure what is being accomplished through LEDSP is also a determining factor in ensuring efficiencies in resource allocation. At the time of the evaluation, the program had yet to collect all the information required by the revised Performance Measurement Strategy.

Finally, a number of factors, including many external to the program, will continue to impact the ability of LEDSP to fully reach its expected results. The strength of First Nations' governance structure, their institutional capacity, their geographic locations, and the overall cultural context in which they operate will all continue to have an impact on the implementation of LEDSP.

Other Evaluation Issues

The evaluation found that LEDSP complements other activities and funding in the Land and Economy Strategic Outcome. At the same time, more can be done to ensure that programs under Land and Economy maximize their efforts. The evaluation highlighted several best practices and lessons learned, including planning at a community level, effective organization of business entities, and strategic decision making about business operation and acquisition.

As a result of these findings, it is recommended that INAC:

1. Review Land and Economic Development Services core funding formulas.
2. Increase collaboration and efforts to enable planning around land that will facilitate opportunities for economic development.
3. Continue to ensure regional offices are able to utilize targeted funding in a flexible manner that meets strategic community needs while maintaining an emphasis on the environmental stream.
4. Review Data Collection Instruments and Performance Measurement Strategy to ensure they adequately inform departmental decision making around community development, with a focus on the outcomes of economic development and land management..
5. Develop a strategy for continued capacity development of communities to maximize access to the continuum of LED programs, and facilitating aspirational communities' transition to sectoral self-government.
6. Explore the continued relevance of the different components under the First Nations Oil and Gas and Moneys Management Act, given the limited participation of First Nations.

1.2.1 Background and Description

In accordance with its 2014-2015 Program Alignment Architecture, INAC operates the following five overarching programs that relate specifically to the management of Aboriginal land and the promotion of economic growth:

• Aboriginal Entrepreneurship;
• Community Development;
• Strategic Partnerships;
• Infrastructure and Capacity; and
• Urban Aboriginal Participation.

1.2.2 Program Authorities

In 2014, terms and conditions for the following authorities were consolidated into one single authority, Contributions to Support Land Management and Economic Development:

• Contributions to the Inuit Art Foundation for the purpose of assisting Inuit artists and artisans from the Northwest Territories, Nunavut, northern Quebec and Labrador in the development of their professional skills and marketing of their art
• Contribution to implement the First Nations Land Management Act (Contributions to First Nations and Contributions to the Resource Centre)
• Contributions to Indian bands for land and estates management
• Contributions to Indian bands for Land Management Capacity Building
• Payments to support Indians, Inuit and Innu for the purpose of supplying public services in economic development

The evaluation examined funding through those authorities and the current authority.

1.2.3 Links to Community Development Program and related sub-programs)

The Community Development program includes four sub-programs:

• Lands and Economic Development Services
• Investment in Economic Opportunities
• Administration of Reserve Land
• Contaminated Sites On-Reserve

While not directly covered by this evaluation, the other sub-program areas constitute an important contextual component that must be fully considered as part of the Community Development Program.

1.2.4 Objectives and Expected Outcomes

A Performance Measurement Strategy for sub-program 3.2.1 Lands and Economic Development Services was approved in March 20, 2014, by the INAC Evaluation, Performance Measurement and Review Committee. For the purpose of this evaluation, the 2014 Performance Measurement Strategy was used as a base-line and, where available, to measure performance. It should be noted that due to recent program re-alignment and recent development of the Performance Measurement Strategy, performance indicators and data sources from previous Performance Measurement Strategies have been used, where applicable, in order to assess aspects of performance.

In 2013-2014, the Department went through an exercise to streamline reporting requirements, develop a new Program Activity Architecture and consolidate the program's terms and conditions. In the Lands and Economic Development Sector, this led to the development of Terms and Conditions for Contributions to Support Land Management and Economic Development, and accompanying performance measurement strategies and program risk assessments.

The Lands and Economic Development Services sub-program (3.2.1), contributes to The Land and Economy Strategic Outcome by providing support for activities that establish the conditions for economic development to take place. Supporting community development is expected to lead to greater participation in the economy and improved economic prosperity for Aboriginal peoples.

In playing this key support role, Community Development (3.2) programming expects to support greater self-reliance and participation in the mainstream economy and community well-being.

This sub-program contributes to the expected result of Community Development by providing critical support for communities to effectively build and manage a solid land base for economic development. The expected results of this program are the reduced risk of federal liabilities and enhanced conditions for First Nation and Inuit communities to pursue greater independence/self-sufficiency and sustainable economic development.

The three expected outcome of the sub-program are:

• Economic development activities informed by strategic planning;
• Land, environmental, oil and gas and moneys management responsibilities assumed by First Nations; and
• Prevention of contamination of reserve land.

A logic model for the program was created for the Performance Measurement Strategy and can be found in Appendix A of this report.

1.2.5 Program Management, Key Stakeholders and Beneficiaries

Both the INAC Headquarters and the regional offices play a direct role in the implementation of activities undertaken through the Lands and Economic Development Services sub-program. In addition, a number of other stakeholders support the implementation of these activities. This sub-section provides a brief description of their role.

1.2.6 Program Resources

The sub-program has a newly consolidated single authority: Contributions to Support Land Management and Economic Development. The Department provides funding for lands and environmental management, economic development, and opt-in legislative initiatives such as First Nations Land Management Act and FNOGMMA. Through these terms and conditions, INAC provides support to First Nation and Inuit Communities to assist with enhancing the economic development, land, environmental, and moneys management capacity of their communities which support the conditions for economic development to occur, increasing their participation in the economy – in line with the Land and Economy Strategic Outcome.

Table 1

2.3.1 Planning and Development of Methodology

Subsequent to the approval of the Terms of Reference in June 2014, a Working Group was formed. Its purpose was to provide feedback on key pieces of the evaluation, including feedback on the methodology and evaluation findings.

The Working Group included members from several areas of the LEDSP program. It met to review and provide feedback on the evaluation methodology prior to data collection. Subsequent meetings and exchanges were held with some representatives on an as needed basis. The initial launch meeting was held in January 2015 to review the Methodology Report followed by meetings in April 2015 to review preliminary findings and June 2015 to review the final report.

Additionally, an Advisory Committee with members from other Lands and Economic Development programs was formed to provide input to the evaluation at the methodology report, preliminary findings, and final report stages.

2.3.2 Detailed Methodology Report

The development of the methodology for the evaluation was informed primarily by the LEDSP sub-program 3.2.1 Performance Measurement Strategy (dated March 2014), which outlines some of the key indicators and information collected and through preliminary consultations.

A Methodology Report was developed based on a preliminary document and data review and six preliminary interviews conducted with program staff. Interviews explored potential issues and challenges in conducting the evaluation, key documents, and areas where the program would like deeper assessment. Program staff, the Working Group and Advisory Group provided input into the development of the methodology report. This phase was undertaken between July 2014 and December 2014.

All internal documentations; administration, performance and financial data; list of key informant interviewees, and the selection of case studies were provided by the Working Group and program officials and validated, reviewed and approved by the evaluation team.

2.3.3 Data Collection and Analysis

The evaluation's findings and conclusions were based on the analysis and triangulation of the following lines of evidence. This phase was undertaken between January 2015 and May 2015.

• Document and program file review

A document and file review was conducted, which contributed to a thorough understanding of the program, development of a methodology report, particularly case studies, and addressed evaluation issues related to relevance and performance.

Evaluators read and analyzed program documents against the issues and questions identified for the evaluation. Supporting themes and insights emerged and were integrated into a findings template. The document review gathered reports from program officials at Headquarters and regional offices, as well as information available in the public domain. Key documents included policy and program documents, progress and annual reports, Speeches from the Throne, Report on Plans and Priorities, Departmental Performance Report, management and business plans, meeting minutes, etc.

• Literature and Media Review

A review of domestic and international literature was conducted to examine issues of relevance, lessons learned, and best practices. The literature review was led by EPMRB with initial support and guidance of the contractor with respect to setting parameters and scoping out the issues. An emphasis was placed on issues related to First Nations land and capacity development and an examination of related approaches and services, among other issues to be identified.

The literature review began with a systematic scan of reports, documents, and articles using key words and phrases related to the program. Key documents were identified for review and an index of documents was created. The list of documents was assessed to verify that there were no gaps, ensuring the literature review did not duplicate previous research. Care was taken to ensure previous research conducted for departmental evaluations or reviews was incorporated.

Documents were summarized, analyzed, and coded according to the evaluation questions. Major findings populated a literature review summary template. Common themes and insights as a result of the coding were interpreted and written in a findings summary document that was later triangulated with other lines of evidence. The consultant reviewed the literature review, identified gaps, and assisted in triangulation with other lines of evidence.

• Administrative and Financial Data Analysis

The evaluation included an analysis of quantitative program data and operational data. The review supports some of the other lines of evidence in the analysis of evaluation issues relating to performance and data- collection and reporting.

The data review covered key components of what is currently included in LEDSP, through both its Core Allocations and its Targeted Funding. It is important to note that the current program structure under LEDSP became effective April 1, 2014, while this evaluation technically covers the five years prior to that date (that is the period between 2009-2010 and 2013-2014). Regardless of this restructuring, the actual activities undertaken by the Department have remained largely of the same nature and, as such, the restructuring did not create a significant challenge for the context of this review.

The data review examined the Core Allocations component of LEDSP: Economic Development Activities (formerly the Community Economic Development Program, RLEMP, and First Nations Land Management - FNLM). The data review also examined LEDSP Targeted funding, including what was formerly the Community Support Services Program and funding under the Lands and Environment Action Fund (LEAF). Finally, the data review examined FNOGMMA allocations.

The data analysis was a complete review of INAC performance, administrative and financial data related to Lands and Economic Development Services. The Administrative data review included an analysis of the availability of program data/databases from INAC management systems, financial systems, program databases, implementation of the Performance Measurement Strategy. Data sources were analyzed to identify trends and develop graphs and a technical report. Findings from the technical report were triangulated with other lines of evidence.

• Key informant interviews

Key informant interviews were conducted to gain a better understanding of perceptions and opinions of individuals who have had a significant role or experience in the management and delivery of LEDSP, as well as stakeholders who were expected to benefit from the program.

A list of interviewees was developed based on input from program management, the Working Group, and the Advisory Group. A total of 63 key informants were interviewed with program staff from each of the components of the program: LEDSP Core, LEDSP Targeted, FNOGMMA and other funding streams. Interviews were also conducted with INAC regional staff, related program staff from other areas in INAC and major LEDSP funding recipients.

• Program Management [n=10]
• Regional Staff [n=42]
• Other related INAC programs [n=6]
• Other Stakeholders and Representative Organizations [n=7]

Interview guides by interview group were designed to address all of the pertinent evaluation issues and questions. Semi-structured interviews were tailored to each respondent group, as applicable. This allowed for targeted questions that make the best use of the knowledge and experience of each key informant. As much as possible, common questions were applied across the guides to promote rigor and to strengthen the analysis. Interviews were conducted by phone and in person.

Key informant interview responses were organized, analyzed and coded according to the evaluation questions. A technical report was drafted, and findings were supplemented with additional interviews. In some cases, interviewees with knowledge of both LEDSP and Administration of Reserve Lands (3.2.3) had extended interviews that covered both areas. The technical report with integrated findings from other interviews was triangulated with other lines of evidence.

• Case Studies

A total of eight case studies were conducted between March and May 2015. As part of the evaluation, case studies focused on community-level information at a regional level examining implementation and performance of the program. Case studies also included interviews with regional staff regarding the program and context of case study results. The case studies were conducted by EPMRB with support from PRA.

Evaluators worked with program officials, Working Group members, and Advisory Group members to select eight communities for case studies. Cases were selected based on the following criteria: population, remoteness, land management regime, funding received from LEDSP program components, and other relevant factors. One additional case study gathered perspectives from representatives of the Land, Environment and Economic Development Committee members, which included a representative sample of communities throughout Ontario. Four case studies were conducted in British Colombia as a region of focus. Case studies were also conducted in communities in Alberta, Saskatchewan, and the Atlantic region. The case studies were as follows:

• Adams Lake First Nation (British Colombia)
• Cowichan Tribes (British Colombia)
• Kwantlen First Nation (British Colombia)
• St. Mary's First Nation (Aq'am) (British Colombia)
• Tsuu T'ina First Nation (Alberta)
• Kahkewistahaw First Nation (Saskatchewan)
• Miawpukek First Nation (Newfoundland)
• Land, Environment and Economic Development Committee Meeting – April 2015 – Nippissing First Nation

Case studies included 30 interviews, document review, and community site visits. Evaluators worked to draft case study interview and focus group tools that would be used with regional staff, community members, and stakeholders. The tools were reviewed by the Working Group and sent to interviewees in advance of the visit.

An observational case study approach was used to test the logic model and the LEDSP's theory of change. The goal was to observe and identify the factors that have hindered or led to the communities' ability to achieve economic development, conduct land and environmental management activities and their level of preparedness for land management. The case studies also provided a method to test how the activities under LEDSP fit with the Land and Economy suit of program continuum under the Program Alignment Architecture. Particular attention was given to observing the extent to which the programs are tools to enhance the First Nations' capacity to assume greater level of involvement and participation in land management. The case studies examined best practices and lessons learned from front-line representatives and community members.

2.3.4 Reporting

Findings from all lines of evidence were analyzed and identified against evaluation issues. Findings were then cross-identified and triangulated in order to identify emerging themes and key findings. Several documents and supporting technical-based reports were created to reflect the evidence collected from the evaluation based on evaluation issues as per the evaluation matrix.

2.3.5 Considerations, Strengths and Limitations

3.2.1 Government Priorities

The sub-program 3.2.1 Land and Economic Development Services is aligned with the Government of Canada Outcome Area "Strong Economic Growth" according to the Whole of Government Framework. The outcome area is described as: "Program activities aim to create an environment conducive to economic growth and to promote the development of all sectors of the economy and in all regions of Canada."^{Footnote 18}

Various Government of Canada commitments have supported Aboriginal economic development as a government priority. The 2012 Crown-First Nations Gathering committed to unlocking the economic potential of First Nations as a priority. The federal budgets of 2012, 2013, 2014 and the 2013 Speech from the Throne have each renewed the Government of Canada's commitment to Aboriginal economic development. Budget 2014 stated that economic opportunities for Aboriginal communities in the natural resources sector, specifically West Coast energy, can lead to significant profit opportunities and job creation.^{Footnote 19} Finally, Budget 2015 committed an additional $30 million over five years to add additional First Nations to the FNLM Regime. All key informants indicated that collaborating with First Nations in order to facilitate economic opportunities is a central priority of the federal government.

The 2009 Federal Framework for Aboriginal Economic Development notes that Aboriginal peoples play an important role in the economy, specifically "leveraging investment and promoting partnerships with private sector to produce sustainable growth for Aboriginal peoples, "^{Footnote 20} among other goals. It states, "that building new opportunities for Aboriginal Canadians to participate in the economy is the most effective way to bridge the socio-economic gap with other Canadians."^{Footnote 21}

The framework also highlights an emerging consensus around the idea that the Indian Act places barriers on economic development and investment on-reserves. Under this strategic priority, addressing the legislative barriers imposed by the Indian Act is one among four key government activities. First Nation management of land under the FNLMA addresses barriers imposed by the Indian Act.

3.2.2 Departmental Priorities

Guided by the Federal Framework for Aboriginal Economic Development, INAC Community Development (3.2) programming contributes to The Land and Economy Strategic Outcome by providing support for activities that establish the conditions for economic development to take place. In playing a support role, Community Development programming expects to influence greater self-reliance, and participation in the mainstream economy and community well-being.

The sub-program also addresses INAC's priority of improving partnerships and relationships. It aims to meet the priority by facilitating community development and capacity. For example, it continues to further integrate community planning and support for community economic development, including strengthening planning for lands and environmental management with linkages to community infrastructure planning and investments.^{Footnote 22}

The Land and Economic Development Services sub-program (3.2.1) contributes to the expected result of Community Development by supporting activities that establish conditions for economic development to take place. In playing this key support role, Community Development programming expects to influence greater self-reliance and participation in the mainstream economy and community well-being.

4.1.1 LEDSP - Core Economic Development (formerly Community Economic Development Program)

LEDSP- Core Economic Development supports First Nations and Inuit recipients to hire or contract individuals that contribute to economic development activities to the benefit of the community.

LEDSP- Core Economic Development (formerly Community Economic Development Program) has been a significant component of the funding provided by the Lands and Economic Development Services sub-program. The investment in this component has fluctuated over time, increasing from $48 million in 2009-2010 to $52 million in 2011-2012, before decreasing to $48 million in 2013-2014. The data indicates the actual number of First Nations communities that received Community Economic Development Program funding over the period covered by the evaluation has decreased, from 480 communities in 2009-2010 to 458 communities in 2013-2014.

All lines of evidence found that stable, multi-year funding enables First Nations and Inuit recipients to hire or contract the services of an economic development officer, who can undertake community economic development planning, develop proposals, leverage financial resources, and deliver economic development services.

All case studies found that the economic development funding allowed communities to undertake important projects that resulted in land and economic development. Funding was used for a variety of examples, most frequently hiring economic development officers. For smaller communities, the Chief and band manager assume the economic development role in the community. According to a survey of communities from a previous evaluation, just under half (48 percent) of respondents said that funding from the Community Economic Development Program allowed them to hire a full-time economic development officer. Other uses for the funding include launching new business ventures, training and capacity development, strategic planning, investment promotion, resource development potential, economic development planning, feasibility studies, and community meetings to discussion planning.

Case studies demonstrated how economic development organizations supported by LEDSP facilitate an improved environment for economic development. Based on a community's specific social and economic circumstances, an officer's roles vary greatly. For example, an economic development officer may be involved in writing proposals, seeking and developing economic opportunities, operating both non-profit and for-profit corporations, or negotiating with resource companies. An economic development officer's role may also involve other portfolios, specifically land management, training and employment development, and environment. Some economic development officers in small communities also administered housing programs or infrastructure programs. There was extensive anecdotal evidence from case studies and key informants regarding the socio-economic benefits to communities.

There is limited quantitative information on the specific results and outcomes of its investment through the LEDSP's economic development core allocations.

The reporting gathered by INAC on Community Economic Development Program funding provides limited quantitative information on the activities undertaken by each community, and none of the information provides a systematic measurement of the impact of these activities on communities receiving funding. The evaluation confirmed findings from a previous evaluation in 2009 that found annual reports and operational plans provided by communities receiving Community Economic Development Program support do not provide sufficient information to assess economic development within communities.^{Footnote 24} The availability of performance information and data collection will be examined in Section 5.3.

Economic development activities create jobs, businesses, and growth for communities.

While there is limited systematic data on outcome of LEDSP- Core Economic Development, all lines of evidence highlighted LEDSP Core Economic funding as being crucial to exploring, developing, and managing economic opportunities. Economic development officers are able to leverage funds from federal, provincial, and private sources to undertake additional initiatives. Community case studies demonstrated that LEDSP funded activities were resulting in better economic outcomes on-reserve. Several case studies found that successful businesses overseen by economic development officers were prospering on and off-reserve. Case studies found that LEDSP funded economic development officers were creating opportunities for employment, often in remote communities with limited job options. Two case studies noted extremely low unemployment rates as a result of job creation by the economic development offices. Economic development officers were found to play an indispensable role in First Nations communities.

Capacity development and support continues to be an issue affecting the performance of LEDSP.

As highlighted in Section 3.1, capacity development and support of community economic development officers continue to be a challenge. Case studies found many economic development officers struggled with the capacity to serve the variety of roles required of an economic development officer in their community. Particularly in small and remote communities, economic development officers also serve roles in lands, environment, housing, and training. In June 2009, the Audit and Assurance Services Branch completed an Audit of Capacity Development which concluded that, while a number of programs have been developed to support capacity development, INAC lacked a coordinated, risk-based, strategic approach to the design, delivery and implementation of capacity development programming.^{Footnote 25} While INAC has responded to the audit and various organizations supported through targeted programming provide capacity development, the evaluation found that more support is needed for capacity development.

4.1.2 Reserve Land and Environment Management Program

The RLEMP has been introduced to support First Nations that wish to exercise increased responsibility over their reserve land, resources and environment. It provides First Nations with the opportunity to hire or contract the services of a land manager so that they can exercise increased responsibility over their reserve land, resources and environment under the Indian Act. By enabling First Nations to take responsibility for Indian Act land management activities on behalf of INAC, communities are able to build their internal capacity and seize opportunities^{Footnote 26}. During the 1980s, INAC implemented the Regional Lands Administration Program, which has been providing funding to First Nations to participate in land management activities under the Indian Act land management regime. While RLEMP is largely seen as a replacement of the Regional Lands Administration Program, the fact remains that many communities still received Regional Lands Administration Program funding during the period covered by the evaluation. The number of First Nations receiving Regional Lands Administration Program funding has decreased from 93 communities in 2009-2010 to 50 communities in 2012-2013. More than half of the communities receiving Regional Lands Administration Program funding are located in British Columbia. The contribution that each community received under Regional Lands Administration Program during the period covered by the evaluation varied between $6,000 and $100,000, with an average of $27,978. While the total funding in 2009-2010 stood at $2.6 million, it had decreased to just over $1 million in 2013-2014.

During the evaluation period, RLEMP provided approximately $2.6 million annually for training and development. That amount declined in 2013-2014 to $1.8 million for training and development of land officers. Operational RLEMP communities are required to have a land manager or officer certified within two years of joining RLEMP.

The funding that RLEMP provides to Operational RLEMP communities to support land management activities in selected communities increased over the evaluation period. INAC contributions to RLEMP communities increased from $2.3 million in 2009-2010 to $5.6 million in 2013-2014. INAC has also provided, during the period covered by the evaluation, funding to approximately 11 First Nations that have received Delegated Authority under RLEMP. This has represented an investment of approximately $1.9 million annually.

First Nations land managers are being trained as certified land managers and supported by land management associations, including NALMA, their associated regional land associations and First Nations Alliance 4 Land Management in British Columbia. First Nation land managers suggested that training should be more practical and supported by local organizations.

The RLEMP includes a professional land management training and certification program that prepares selected First Nations for their new roles and responsibilities under a broader scope of land, resources and environmental management. NALMA has formed a partnership with the University of Saskatchewan for the delivery of the Professional Lands Management Certification Program, which is a two-year program providing post-secondary and technical training to lands managers/officers. The University of Saskatchewan received funding from INAC for the delivery of the program until 2011. After that date, tuition was funded directly to First Nations.

A total of 113 lands managers/officers have been certified under the program since its inception with another 14 to be certified by the end of the fiscal year 2014-15. Throughout the evaluation period, a total of 74 individuals were certified. A large number of the communities that received support for land management training over the evaluation period were in Saskatchewan. While most respondents noted that the training was very informative, some noted that the training was not as useful as they had hoped. First Nations land managers suggested that the NALMA portion of the training was more relevant to their day to day activities than the University of Saskatchewan portion. Echoing the findings of a 2009 Implementation Evaluation of RLEMP,^{Footnote 27} key informants noted that the training would be more practical if it were tailored to their specific regions and communities. Some key informants noted the Professional Lands Management Certification Program could play a larger role in supporting land management training for FNLM communities.

NALMA also provides networking opportunities, tools, and technical support. According to key informants, they provide over 400 referrals each year and have developed toolkits such as the one used for the Additions to Reserve Policy. In 2012-2013, NALMA assumed partial responsibility for managing the grants and contributions of the Survey Program on behalf of INAC. The Department selects the survey project priorities within the regions and funds those projects through NALMA.

The Regional Lands Associations operate as NALMA's technical lands management bodies and play a role in supporting capacity development in First Nations communities to address their needs as they relate to lands, resources and environment management. The Regional Lands Associationsassist newly appointed lands managers/officers in First Nations communities with their day-to-day operations, administer regional training sessions. However, case studies found that some communities, particularly in British Columbia, felt that the Regional Lands Associationsprovided little to no support to their needs. Instead, some communities in British Columbia sought support from other organizations such as the First Nations Alliance 4 Land Management in British Columbia. The Regional Lands Associations were noted by some other case studies and key informants for their invaluable support, particularly for their contributions to FNLM readiness. The Regional Land Associations would benefit from reviewing their engagement with all communities in their region, ensuring their services are useful and accessible.

The number of operational RLEMP communities is increasing.

Figure 3 illustrates the funding received by First Nations through each of the three phases of the program, which include Training and Development (RLEMP T&D), Operational (RLEMP OP), and those communities with Delegated Authority (RLEMP DA).

The data indicates that the number of First Nations that received operational funding increased steadily during the period covered by the evaluation, whereas the funding provided for training and development has fluctuated.

Regarding the training and development phase of RLEMP, the data indicates that while all regions have received funding during the period covered by the evaluation, Saskatchewan is where the largest number of funding recipients is located. When it comes to operational RLEMP communities, British Colombia is where the largest number of communities is found, followed respectively by Saskatchewan and Ontario.

RLEMP communities are building their capacity and taking on additional responsibility, contributing to self-sufficiency and independence.

LEDSP supports the need to build capacity of many First Nations and Inuit communities so they can provide economic development services. This also recognizes the need to build capacity in First Nation communities to perform land and environment management activities under the Indian Act. A variety of promotional products, resources and land management tools are developed by the Department and NALMA to assist with this. Workshops and presentations promoting the importance of economic development and sound land and environmental management under the Indian Act are conducted by both the Department and supporting partners such as the National Aboriginal Lands Managers Association and their Regional Land Associations, and the Council for the Advancement of Native Development Officers. These associations promote and support interest in performing Indian Act land and environment management functions, and economic development. They also support the Department by providing workshops to address capacity gaps.

Case studies and key informant interviews noted that operational RLEMP First Nations are undertaking more land management responsibilities. Key informants in regional offices noted that certified land managers in RLEMP communities were undertaking tasks that would have otherwise been performed by INAC regional staff. Although there is regional variation as to the level of participation from RLEMP Operational First Nations, First Nations noted that the number of permits and leases they processed was increasing. According to the some regional offices, by RLEMP First Nations undertaking some activities, time and resources were freed up for their staff to focus on more complex transactions. By contract, other regional office staff noted they spent more time working with Operational First Nations to support their capacity to undertake land management activities, particularly with legal instruments. This demonstrates the complexity of land management under the Indian Act and indicates a need for INAC land officers to support those in RLEMP First Nations as they build their capacity.

RLEMP First Nations are conducting community consultations and raising awareness of land management systems.

RLEMP First Nations and their land managers are engaging with their communities to make decisions about land management. Case study community representatives noted that their largest task is educating the community on land management and for communities that are FNLM development, how FNLM would impact it. They noted that land was not traditionally managed under a formal regime, and that community members and leadership were resistant to change their perspectives on land management. As a result, much work has been done to inform community members on land management and future land planning. Land managers hold community meetings, visit homes, publish materials, mail out information and send out Facebook updates. Case studies found that community members are becoming more knowledgeable as a result of the consultation and awareness-raising sessions.

Some communities are transitioning from RLEMP to the FNLM regime.

It was regularly noted during interviews that the investment in RLEMP is largely based on the premise that these communities would eventually transition into the FNLM regime. Evaluation findings indicate that the Department's priority is on promoting and improving, as required, the FNLM regime to facilitate the transition of the largest number of communities possible. Findings from the key informant interviews and the data review suggest that First Nations are transitioning to the FNLM regime. Nearly all FNLM Development First Nations were involved in the RLEMP program or previous iterations of it such as Regional Lands Administration Program. NALMA works to enable transitions through each stage of RLEMP and from RLEMP into FNLM. The Land Advisory Board is the primary support organization for First Nations pursuing FNLM.

Key informants and case studies identified a number of challenges, which may limit First Nations decision to opt into the FNLM regime. It was mentioned that there is a lack of funding to support First Nations in the FNLM process. Also, according to some key informants, a lack of knowledge among communities about how the FMLNA process affects the number of entrants. Therefore efforts should be made by the Department to better inform First Nations of the requirements and procedures. Key informant interviews and case studies noted that communities may not have the community support to transfer power and responsibility to Chief and Council. Some key informants noted that communities may not have the capacity to manage their land and environment. Some key informants noted that some First Nations may be unwilling to accept responsibility for land management, citing fiduciary obligation as the reason INAC should manage lands. Case studies found that communities were concerned about the liability transferred to the First Nation under FNLM, particularly environmental and emergency management liabilities. If First Nations are to transition to the FNLM regime, findings from the key informant interviews suggest that First Nations "readiness" is key – some key informants reported that a clearer understanding and definition of "readiness" is necessary. It was also noted that increased support in developing capacity in terms of governance is important if First Nations are to successfully transition to the FNLM regime. Specifically, informant interviews and the literature review mentioned that greater capacity and a stronger governance structure will improve the decision-making process as well as community buy-in and engagement.

4.1.3 LEDSP Core- First Nations Land Management Act

This act provides the legal mechanism for First Nations to opt out of the land management provisions of the Indian Act by developing land codes that govern reserve lands and take advantage of economic development opportunities. It transfers administration of land to participating First Nations and includes the authority to enact laws with respect to land, the environment and most resources. Support provided through this program helps First Nations transition through the stages needed to take on this land management responsibility independent of INAC.

The number of First Nations participating in the FNLM regime is increasing.

The number of First Nations that have participated in the First Nations Land Management Act has steadily increased during the period covered by the evaluation (see Figure 4). The number of operational First Nations under the FNLM regime has increased from 29 communities in 2009-2010 to 38 communities in 2013-2014. It was noted by key informants that by April 1, 2015, a total of 50 First Nations will be operating under the FNLM and that another 50 are expected to be operational by 2017.

Also, the number of First Nations at the developmental stage of FNLM has increased, particularly during the fiscal year 2012-2013 and 2013-2014. More specifically, the developmental stage involves First Nations who have been selected for entry in the FNLM Regime, who have adhered to the Framework Agreement, and who have been added to the schedule of the First Nations Land Management Act. The funding provides assistance for the development of land management systems, the negotiation of the individual agreement with Canada and the ratification vote in the community. The federal government added 18 new entrants in 2012-2013 and eight new entrants in 2013-2014.

In terms of regional distribution, the vast majority of operational First Nations under the FNLM regime are located in British Columbia (60 percent). The only other regions where we find operational First Nations under the FNLM regime are Ontario, Manitoba, and Saskatchewan. It should be noted, however, that there are First Nations at the developmental stage in all regions of the country.

INAC provides financial assistance to participating First Nations. The level of funding has increased over the period covered by the evaluation, reflecting the increased participation of First Nations in this program. For operational communities, the funding provides a contribution toward the overall cost of land and environmental management responsibilities under the FNLM regime. For communities at the developmental stage, the funding assists the community through the various stages before becoming operational.

The Land Advisory Board, including its Resource Centre, is supporting First Nations that are FNLM developmental. However, operational FNLM communities feel they have little support.

The Department is also funding the Land Advisory Board, including its Resource Center, for the support they provide to First Nations during both the developmental and operational stages. As indicated in Table 2, the Department provided between $3.4 million and $5.3 million annually for this purpose during the period covered by the evaluation.

Case studies in Saskatchewan and British Colombia noted that the Land Advisory Board was particularly helpful in supporting communities in developing their land code and ensuring information was communicated to members in preparation for the vote.

However, operational FNLM communities noted that once they were no longer development, they felt there was little support from the Land Advisory Board or INAC. Communities noted that the Land Advisory Board and INAC spend most of their resources supporting communities during their ratification process but not enough time supporting First Nations after they became operational.

There are clear benefits to communities under the FNLM regime, including ability to process transactions quicker, increased ability to do businesses, and increased control over land management affairs.

The literature and document reviews, key informant interviews and case studies identified benefits of transitioning to the FNLM regime from the Indian Act. By having greater autonomy and control over their lands and resources, First Nations have greater freedom in economic development decision making. Participating FNLM First Nations operate their own land code, which offers significant benefits in pursuing economic development activities. Land management activities are completed at a significantly faster pace by participating FNLM communities when compared to those under the Indian Act. Key informants noted the FNLM enables communities to 'move at the pace of business'. FNLM communities benefit from a greater flexibility related to the terms and conditions for land related transactions. They report being better able to protect and promote community legal interests and community values for development. Increased collaboration with external investors leads to an increase in the number of businesses established on-reserve that are owned by external partners. There is continued community investment in both the hard and soft infrastructures required for economic development. Finally, according to the document review and case studies, FNLM communities experience an increase in the number of jobs created on-reserve.

RLEMP serves as a small incremental step toward autonomous land management. The FNLM process is a direct step to self-government.

A review of relevant literature suggests that processes that strengthen local institutions and facilitate sustainable economic development lead to self-governance. FNLM has been referenced specifically as a tool for governing based on local needs, culture and knowledge^{Footnote 28} and as such, facilitates the factors the literature deems necessary for sustainable Aboriginal economic development practices.^{Footnote 29} Broadly speaking, the literature also suggests that asserting control over community governance and building strong local institutions (such as a land code) are key steps toward the goal of nation-building.^{Footnote 30}

Case studies and key informant interviews corroborated the concept that RLEMP and FNLM are aligned with this approach. More specifically, RLEMP is a critical step toward a holistic approach to land management and an incremental step toward achieving FNLM, and the evaluation found that FNLM was an important opportunity to practice self-government. For communities aspiring to complete self-government agreements, the FNLM Regime was seen as a stepping stone to a self-government agreement. Practically, FNLM community engagement activities, including community surveys, meetings, and votes raise awareness and discussion about self-government. In addition, the evaluation found that self-government activities supported LEDSP and FNLM activities. The process of writing a constitution, community visioning, and community planning, establishes a solid foundation of governance for land management and economic development activities.

4.1.4 LEDSP Targeted Funding Allocations

LEDSP targeted funding continues to support key initiatives in capacity development, environmental management, and regional priorities that contribute to land management and economic development.

The sub-program also provides proposal-based, targeted funding for a variety of projects related to the core funding components above. Also amalgamated from Lands and Economic Development, as well as other INAC programming components, these fall under the umbrella of LEDSP-Targeted programming, and these targeted funding initiatives relate to:

• land management, resources management, economic development, and FNLM readiness;
• environmental management;
• support for First Nations undertaking the Additions to Reserves process; and
• regional priorities.

In principle, 20 percent of the total regional funding for targeted initiatives is meant to be allocated to each of the first three categories immediately above. The remaining 40 percent of the regional funding for targeted initiatives is allocated to regional priorities.

Over the period covered by the evaluation, what is now included in LEDSP Targeted funding supported a range of activities that were expected to enhance the ability of First Nations to pursue economic development activities.

4.1.5 Inuit Art Foundation

Contributions to the Inuit Art Foundation, particularly through their activities producing the Inuit Art Quarterly and administering the IglooTag Program, raise awareness of Inuit art.

INAC provides funding to the Inuit Art Foundation to specifically promote and support Inuit visual and performing artists and cultural heritage. INAC provides the Inuit Art Foundation with an annual contribution of $458,000 for core operating and administrative expenses. While the contribution was previously administered through a stand-alone authority, in 2014, the authority was folded into the Contributions to Support Land Management and Economic Development.

The Inuit Art Foundation directly supports artists by promoting Inuit art in Canada and internationally. INAC recently devolved the management of the Igloo Tag program to the Inuit Art Foundation, allowing the Foundation to continue to maintain the internationally recognized licensing program. According to key informants, the support for the Inuit Art Foundation is integral to the marketing and awareness of Inuit art. An evaluation of the Foundation in 2011 found that the organization was effective in promoting Inuit art, particularly through their magazine, the Inuit Art Quarterly, and through events or exhibitions. The evaluation found that networking events facilitated exposure and connections between artists, galleries and other dealers.

4.1.6 First Nations Oil and Gas and Moneys Management Act

FNOGMMA provides the legal mechanism for First Nations to opt in to either the management of oil and gas resource activities on-reserve or the administration of their band moneys normally undertaken by Indian Oil and Gas Canada and INAC, with funding provided through programs meant to help First Nations transition into these responsibilities independent of INAC. FNOGMMA includes two distinct legislative frameworks, the first one relating to the management of oil and gas resource development and the second one relating to the management of Indian moneys (capital and revenue trust moneys) held by the Crown on behalf of First Nations.

There has been limited First Nations uptake of FNOGMMA.

At the time of the evaluation, no First Nation was operational or moving through the opt-in process related to the oil and gas management provisions of the Act. As a result, such activities occurring on-reserve were covered by the Indian Oil and Gas Act, and were therefore managed by Indian Oil and Gas Canada. The agency had initially planned to have the Indian Oil and Gas Regulations revised by the end of 2014, which would have allowed the amended Act to come into force. However, this was not achievable given the vast volume and technical complexity of the work involved.

Several key informants noted that First Nations are waiting for the updated of the Indian Oil and Gas Act and regulations to be approved and come into effect before considering the oil and gas component of FNOGMMA as an option, as updated legislation and regulations would allow them to make a determination as to whether the Indian Oil and Gas Act regime is adequate for their purposes. Another key informant noted that administering oil and gas independently is costly for First Nations that do not have the necessary expertise. As such, it is unnecessary to undertake FNOGMMA given that expertise from the Indian Oil and Gas Canada is available without cost.

Further, the evaluation team found that one First Nation is operational under the moneys management component of FNOGMMA and that there was some interest from other First Nations. Interested First Nations may be supported by INAC in undergoing the process to become operational. However, key informants explained that First Nations may choose not to opt into the moneys management component of FNOGMMA due to challenges associated with financial bonding requirements and community ratification thresholds. For example, First Nations that wish to control their trust moneys under FNOGMMA must meet certain criteria. These criteria include developing a financial code that meets the requirements of FNOGMMA. The community must also ratify both the First Nation's decision to opt into FNOGMMA as well as the required financial code through a community vote. As a result, key informants noted that those requirements may discourage First Nations from entering the regime. Key informants suggested that in some cases, the broader community simply has no interest in the regime as the perceived requirements are deemed not to be a significant advantage over the Indian Act, and in other cases, communities may not have the capacity to achieve key FNOGMMA milestones such as establishing a financial trust plan.

6.1.1 External Factors

Good governance, internal capacity and culture contribute to readiness to undertake land and economic development opportunities.

Case studies and key informant interviews highlighted the importance of readiness in pursuing economic development opportunities and in transitioning through land management regimes. Good governance was regularly cited as a positively contributing factor to economic development. All case studies noted that the role that Chief and Council played in economic development could greatly affect the likelihood that an economic development opportunity would be successful.

The literature review noted that leadership development is important for communities who seek to take advantage of economic opportunities; however, many Aboriginal leaders lack formal training in management, administration, and governance.^{Footnote 34} The Harvard Project for American Indian Economic Development also revealed that leadership, the capacity to make and implement decisions, the development of appropriate institutions, and the role of culture are also vitally important in strengthening the economic bases of indigenous communities.^{Footnote 35} Culture was strongly highlighted as a contributing factor to successful land and economic development.

The Leadership capacity gaps that some communities face, compounded by limitations of governance capacity, or poor governance structures, act as further barriers to developing Aboriginal communities. Case studies in Ontario found that some land managers may be challenged by community leaders that are hesitant to engage in economic development based on a formal land regime. For many First Nation communities, lands have a social and cultural value that must be reconciled with any potential economic development.

Planning can mitigate risks and strengthen readiness to undertake opportunities.

Key informant interviews, case studies and the literature review found various ways in which planning strengthens community development, and contributes to opportunity assessment and development. Comprehensive Community Plans were mentioned in all British Colombia case studies as a key factor that guides decision making related to land and economic development. Communities noted that regardless of internal governance, Comprehensive Community Plans contributed to long term community planning by setting key community priorities. Land Use Plans were also emphasized as supporting accountability and long-term vision in the community. Land managers noted that Land Use Plans were important to document the rules, regulations and plans for First Nation communities.

Geography and community infrastructure limit First Nations' ability to undertake economic development.

Geography also plays a role in determining economic success. Aboriginal communities are often located in remote areas that are difficult to access. Those communities near major economic centres have been shown to have more economic development opportunity.^{Footnote 36} Barriers to increasing the usability of the land base also exist where there may be poor or unusable reserve lands, where lands that have decreased in size due to expropriations or land removals, or where there is poor or a lack of proper community planning and design.^{Footnote 37} Remote locations and population base also affect the size of market and availability of qualified individuals. Case studies found that communities in remote locations may experience difficulty recruiting and retaining qualified individuals in lands and economic development positions.

Case studies and the literature review found that infrastructure on-reserve can pose a barrier to potential economic development opportunities. Case studies found that water and wastewater infrastructure had been a key barrier preventing the development of potential commercial leases.

The National Aboriginal Economic Development Board cites proper infrastructure as critical to the development of an economy, particularly so in an Aboriginal context.^{Footnote 38} Transportation infrastructure helps move goods to market, community infrastructure helps ensure that the local population has the necessary services and supports to ensure public health and safety, and communications infrastructure connects communities to domestic and international networks. Community respondents noted that there are limited funding opportunities for infrastructure, affecting their ability to pursue economic development opportunities.

6.1.2 Internal Factors

RLEMP may have difficulty in achieving results because trained land managers may have difficulty implementing a land management regime.

Several case studies found that formal land management regimes are different than traditional approaches to land management. Land managers who operate through the RLEMP experienced some difficulty in convincing leaders to embrace a formal land management regime for economic development. Some land managers that return after completing the two-year land management training feel isolated when they come back to their community and not necessarily supported in their attempt to implement what they have learned. Certified land managers may then move on to other opportunities after their training has been completed. Land managers noted the importance of educating the community on land management issues and taking a change management approach to implementing formal land management.

Community capacity, planning, and engagement contribute to the success of the FNLM community ratification process.

All lines of evidence noted that community capacity contributes to success of aspiring FNLM communities. Best practices from case studies and the literature review indicated that FNLM decision making must be community-based. However, many key informants noted that there was a lot of misinformation about the FNLM regime. Communities that had successful votes undertook the following preparations to inform decision makers and community members:

• Visiting other successful FNLM communities to hear about their challenges and factors contributing to their success;
• Establishing a clear champion for the FNLM ratification vote;
• Conducting extensive community engagement through member surveys, meetings, information materials and home visits;
• Providing information to the community through mail outs, pamphlets, and Facebook;
• Ensuring information was non-biased, supporting a community-driven decision;
• Aligning FNLM ratification with foundational community documents and planning such as Comprehensive Community Plans, and community constitutions; and
• Providing monetary support to participating voters that covered for transportation, child care and other expenses.

Case study respondents noted that community votes are very expensive and require a significant amount of work. The FNLM ratification process was particularly complicated for communities with a large population of off-reserve community members. They noted that electronic voting would be significantly more efficient while better enabling the vote for members off-reserve.

After FNLM ratification, some communities struggle to implement the regime.

Communities were concerned about the amount of support for operational communities given the number of activities involved in establishing the required laws, land use plan, and environmental plan. Some communities noted that the demand for land management had increased dramatically as community members became more aware of their services following the adoption of the FNLM regime. Following the implementation of FNLM, case study communities noted they had to access other external funding through grants to cover the increase in operations. Communities voiced concern over the long-term availability of FNLM Operational funding.

The evaluation found that the effectiveness of FNLM communities ultimately depends on the strength of the land code. While many communities benefited from managing lands according to their own land code, evaluation findings indicate some communities have built land codes with processes that are more bureaucratic and burdensome than those under the Indian Act. While FNLM communities make their own land codes, some communities noted challenges aligning their laws with off-reserve laws in the areas of hunting, conservation, environment and enforcement.

Communities may not transition to FNLM for a number of reasons.

Ultimately, some communities do not aspire to transition to the FNLMA regime. Case studies found that some communities that are RLEMP operational may prefer to stay under the Indian Act and not transition to the FNLMA regime. While INAC program staff seemed ambitious that most of those communities in RLEMP would become FNLM operational, communities may be hesitant to take on the additional liability associated with FNLM. Communities operating under RLEMP may find the program enables them to undertake land management activities effectively.

Case studies and the literature review noted that some communities may not yet have community support to enact the FNLM regime. Some communities noted that INAC must fulfill its treaty obligations by continuing to undertake land management and holding the liability for reserve lands.

Some communities may be unable to take on the additional administrative responsibility of managing land. Some communities may lack the human resources or capacity to manage leases, permits, designations, and land use planning. In Quebec, it was noted that the First Nations Land Management Act was designed to work in a common law system without consideration for the civil code system. Implementing the FNLM regime in Quebec would have implications for land codes and other on-reserve bylaws that must be aligned with off-reserve laws. It was noted by the Quebec Regional Office that there was additional work and legal costs associated with adapting FNLM templates.

In some cases, processes arising from the Indian Act hinders communities' ability to pursue economic development opportunities

Key informant interviews and nearly all case studies found that the designation process (Section 38(2) of the Indian Act) is lengthy and expensive, even in spite of recent improvements to voting and approval processes. Permitting(Section 28 of the Indian Act) was seen as causing delays, particularly the registration process, which several case study key informants said often exceeded the 15-day service standard. Locatee leasing, where community and departmental approvals are needed for an individual to lease to an outside party (Section 58(3) of the Indian Act), also has the potential for causing delays and forgone business. Two community case studies identified specific instances where major developers or flagship lease holders were interested in leasing parcels of land, however, the opportunity was forgone because INAC processes took too long for the interested parties and they sought opportunities elsewhere.

7.2.1 Best Practices

Holistic approaches to community, land and economic development planning contribute to success at a community level.

Comprehensive Community Plans enable communities to establish key priorities and key linkages across program areas. As a result, some communities appear to be effectively leveraging funding sources across programs at a federal and provincial level. They are also able to leverage private sector funds. Furthermore, case studies identified the importance of balancing economic development with cultural, social, and environmental considerations in the community. Holistic planning allows communities to assess business and land opportunities to make informed discussions on the future of the community.

As part of Comprehensive Community Plans, Land Use Plans support extensive community consultation using a map-based approach. It allows community members to be familiarized with the process, identify economic development and other opportunities, and identify infrastructure and resource needs. Community engagement and involvement enables a community-driven process that allows citizens an opportunity to balance cultural and social opportunities with economic development opportunities. It also encourages faster land transactions and reduce the risk of contaminated sites or impacting environmentally sustainable lands.

With long-term land and economic development planning, communities may consider a range of factors, including market potential, financial sustainability, synergies with existing businesses, local labour force, funding potential, partnership potential, fit with environmental and culture values, infrastructure needs, agreements with neighbouring municipalities, and impact on community. Plans for sustainable development create a vision that goes beyond the two year election cycle.

Organizational design, planning and performance management of economic development operations increases potential success and mitigates risks

The literature review and case studies found that establishing an arms-length decision-making body for economic development activities supports effective decision making and prevents interference by elected officials. Some communities noted that establishing an independent economic development corporation had been a key factor of success in their communities. Establishing a system whereby a portion of profits are devoted to the band office and a portion of profits are reinvested contributes to corporate sustainability. Documents and case studies also recommend separating profit-making businesses from profit-losing businesses, establishing the latter as non-profit entities with a social-focused goal such as employability. Operational protocols for businesses such as performance management targets and regular assessment of profitability contributes to business success and sustainability. Lastly, before investing in potential ventures, economic development offices should assess the viability and suitability of the business, based on pre-established criteria.

8.1.1 Relevance

LEDSP is a key element of a shared vision between First Nations and the federal government that aims to broaden and strengthen the capacity of First Nations communities to manage their land and economic development. Recognizing that the legislative framework provided by the Indian Act contains limitations, Parliament adopted the First Nations Land Management Act and the First Nations Oil and Gas and Moneys Management Act. While pursuing specific goals, these two pieces of legislation reflect a commitment to provide opportunities for First Nations that desire to assume greater autonomy in managing their land and assets. Evaluation findings confirm that, in order to give full meaning to the various land management regimes available to First Nations, there is a need to build, enhance and sustain the institutional capacity of First Nations to plan and manage their land and economic development. Through the range of activities it covers, LEDSP contributes to this objective.

There is a direct alignment between LEDSP and the priorities of the federal government, including those of INAC. The 2009 Federal Framework for Aboriginal Economic Development prioritized economic development for First Nations, and that message has been echoed in successive federal budgets. During the period covered by the evaluation, INAC has also responded to this overarching priority by restructuring its land management and economic development programming in order to strengthen the linkages between these two functions.

Finally, the relevance of LEDSP must be properly contextualized, particularly as it relates to the activities of INAC in the administration of reserve land. Historically, the Department has undertaken a wide range of land management activities on behalf of First Nations. At the time of the evaluation, the Department continued to be involved in land management, particularly for those First Nations operating within the land management regime under the Indian Act. The Department is therefore expected to maintain dual roles, assuming land management functions for a number of First Nations, while providing the support, through LEDSP in particular, to First Nations that wish to assume greater autonomy in land and environmental management.

8.1.2 Performance – Effectiveness and success

8.1.3. Efficiency and economy

The amalgamation of land management and economic development activities under LESDP has proven to be both beneficial and challenging. There is a strong logic that links these two areas, including environmental considerations. In practice, however, evaluation findings indicate that operational challenges remain in ensuring LEDSP can be managed as effectively as possible in order to fully achieve its expected impacts. The flexibility provided to regional offices in order to manage some of the LEDSP funding in accordance with local and regional priorities appears particularly relevant in that regard.

The ability of the Department to fully monitor and measure what is being accomplished through LEDSP is also a determining factor in ensuring efficiencies in resource allocation. At the time of the evaluation, the program had yet to collect all the information required by the revised Performance Measurement Strategy.

Finally, a number of factors, including many external to the program, will continue to impact the ability of LEDSP to fully reach its expected results. The strength of First Nations' governance structure, their institutional capacity, their geographic locations, and the overall cultural context in which they operate will all continue to have an impact on the implementation of LEDSP.

8.1.4 Other Evaluation Issues

The evaluation found that LEDSP complements other activities and funding in the Land and Economy Strategic Outcome. At the same time, more can be done to ensure that programs under Land and Economy maximize their efforts. The evaluation highlighted several best practices and lessons learned, including planning at a community level, effective organization of business entities, and strategic decision making about business operation and acquisition.